Re Tenders
I think you'll find it's people fucking with the plan before it's finished. If you specify the requirements in the contract and then some pen-pusher in whitehall decides he wants it to do his email and calendar as well, you can charge on a kind of time and expenses basis outside the agreed figure. A cynic would say that EDS know that some level z civil servant will add his tuppence to the contract, and hence bid low. In the government you never say no to requests as you'll be fingered out as not being a team player. Plus, all input is equal and must be evaluated as such, no matter how shit the suggestion.